Rethinking our unsustainable housing and urban design policiesA radically new approach to low cost housing is needed that recognises the limited amount of accessible land available within our cities, that addresses the multitude of social ills carried over from our past, that delivers within a recession and, importantly, that factors in an evolutionary housing path to be followed from our current limited capacity towards more advanced solutions that will be possible in 30 years time. Statistics from the City of Cape Town are used to illustrate the general concepts, which are otherwise applicable to most South African cities.
The SA Constitution on Housing (Section 26) reads as follows:
Everyone has the right to have access to adequate housing.
The state must take reasonable legislative and other measures, within its available resources, to achieve the progressive realisation of this right.
No one may be evicted from their home, or have their home demolished, without an order of court made after considering all the relevant circumstances. No legislation may permit arbitrary evictions.
Many a built environment professional would say that Section 26.1 of our constitution raises unachievable expectations within the context of the real South Africa as it enters its next decade of democracy. For instance:
It must be recognised that the South African economy will struggle to support the current housing policy, social grants to 12-million people and ARV support programmes with a support base of just over 6 million tax payers.
Critically, a right to an adequate house, per the constitution, does not in itself alleviate poverty. The only way out of poverty is through the education of the next generation; in the interim, the uneducated and “unemployable” can and must become self-supporting through micro-enterprise. To see housing as the holy grail to solve poverty is to chase a mirage.
Current urban designs, without a built-in micro-economy, continue to be socially unstable as the formal sector simply cannot provide sufficient work opportunities. Housing alone is a futile effort if there is no nearby economy.
Further social instability is compounded if we do not create sensible and affordable social structures to deal with families and communities disrupted by HIV.
So let us seriously re-think what we are doing in order for this new urban fabric to have a good chance to meet these constitutional expectations within our current phase of rapid urbanisation. The principal objective is to bring about, through reformed design, both societal healing and access to education without over-extending the state resources derived from its tax base.
With the recession and climate change induced urbanisation, the cost of a standard 42 m2 house has to be reduced by at least 30% both to cope with our economic reality and to allow redirection of expenditure to other essential needs necessary for a productive and economically sustainable society. This is currently poorly provided for within existing policies. New materials and methodologies must be fully exploited and this goal should be achievable without a loss of durability or comfort.
The initial cost saving can be further directed towards the simultaneous construction of medium-rise housing thereby raising densities and keeping the average cost per dwelling unit closer to the national subsidy benchmark.Cost savings can be effected also in various innovative ways. The Community with Dignity (CWD) conceptual home (see Fig. 1 ) is a single story 4 unit building of 42 m2 per two-bedroomed unit or alternatively a double story 7 unit building with an additional 40 m2 micro-enterprise space at ground level. This is a low carbon but durable and insulated structure constructed from a lamination of pre-painted steel-cladding and construction plywood within steel frames on a wooden piled foundation. It should last a minimum of 30 years, is fire-proof and can be built with pre-fabricated panels. Whilst very space efficient, it is just one of several current alternatives that can be considered.
Approximately 75% of provided housing should be suitable for families, being close to generous open spaces; however, the remainder, within the same super-block, should be medium-rise (4 to 8 storeys). Experiences elsewhere have shown that medium-rise buildings are generally unsuitable for raising families.
Urban environments evolve and the next generation should have the choice to either stay with their family housing in a more durable design or to convert to medium rise general residential accommodation in a modern design. This should be acceptable and indeed appreciated by the next generation. These residential time limitations should be written into the Agreements of Lease and will have a positive rejuvenating effect currently absent in most low income developmentsThe serviced site policy should be discontinued as being generally too wasteful of land within cities and often places communities too far from economic opportunities.
Fig. 1. A: Single story 4 units of 42 m2 each or first floor external stairs and repositioned door. B: Ground floor of 7 units 42 m2 each plus 2 shops of 20 m2 each, party walls filled with sterilised sand for sound insulation.
The speed of construction must increase substantially in order to build over 120 houses per calendar day or 40 000 per annum within the City of Cape Town alone (backlog of approximately 400 000 houses will require this rate of construction in order to eradicate over a decade). The current rate of construction is little better than 10 000 per annum.
Very rapid construction, less than one week per home, will facilitate in-situ upgrades of informal housing settlements, avoiding temporary resettlement camps (see In-situ Upgrading).
Informally settled areas, even within a 50-year flood-line, may be suitable for medium term housing that can be moved if necessary in 20 to 30 years' time when other solutions are available and socially acceptable. Therefore at least one of the architectural solutions needs to be a modular home on a raised pile foundation which is movable at minimum cost.
A nett residential density of 140 dwelling units per ha needs to be achieved in order to support other facilities. Final gross density objective per super block should aim at 100 du/ha. Therefore the per annum amount of serviced land required for housing is reduced to 350 ha (to meet the goal of solving the city’s housing shortage within a decade).
Very cost-effective public transport systems must be developed around super-blocks with one-way traffic flows and circle intersections.
Effective use must be made of solar energy and rain-water retention. Gray water use for toilets must be included in a low-cost architectural solution since an approximate saving of 40% of both potable water and electricity can be achieved at a very modest capital cost of less than R6000 per dwelling unit (2010 cost).
Effective space for let-able micro-enterprise has to be included within the urban design.
Seneca once said, “It is not because things are difficult that we do not dare; it is because we do not dare that they are difficult.”
If these objectives can be met by innovative urban and architectural design, I believe the city can overcome major obstacles and develop a new type of sustainable low income society in the city that will contribute positively towards its future, ultimately providing, within a generation, an educated and skilled citizenry and a stable and well socialised population. In short, the built environment professionals need to dare to “box smartly and synergistically” to make this happen.
Synergies in urban design
An urban layout suited to a 21st century South Africa has to make use of multiple design synergies in order to reduce costs and urban sprawl. At the same time, the overall objective of improving efficiency in civic management, people movement, education and work opportunities has to be achieved.
A conceptual list for this new generation super-block (Fig. 2) should include:
Supports approximately 1400 dwelling units divided into 7 family-orientated communities of approximately 144 families each plus another 380 apartments in a cluster of medium-rise buildings
Given the high cost of providing a road to single residential erven when very few residents can actually afford a vehicle and the push to improve public transport (which will be very efficient at these densities), it makes considerable sense to consider very different pedestrian based models for the urban design.
Internal one-way streets should be dominated by pedestrian movement with projected vehicle ownership for less than 15% of families – they can be narrow (6 to 7 m wide). Design internal streets with a shallow V-camber to control storm water drainage and minimise the use of underground piping.
Place housing in double rows within insular blocks to create a high value internal community open space that can be given a unique character through lighting and paving (see conceptual CWD design in Fig. 3). All services can be placed in a single trench between the rows of very minimal length (only 200 m of trenching to service 144 houses).
The closeness of the CWD houses will enhance community spirit and safety especially as there are a generous number of washing and socialising areas within the block.
Standardised medium rise blocks accommodating 190 flats built from a single tower crane with double lift shaft and common landing will reduce construction materials and time to a minimum. A suggested design is given in the super-block layout.
Place a school with its grounds at the centre of a super-block so that the fields can be utilised as open space for weekend sport and safe socialising.
Design a school facility that incorporates a large high volume hall within its classroom structure at minimal additional cost. This provides a facility for the learners during inclement weather and a large multipurpose hall for indoor sports, community meetings and functions
Design the whole school facility as two overlapping primary and secondary facilities covering Grades 1 to 12 under a single administration with primary and high school deputy principals. This optimised school will need to accommodate up to 1400 learners using segregated breaks to facilitate socialising.
Link the functions of a church to the health needs of the community. This can be effectively accommodated in one multi-purpose building sharing seating and ablution facilities within a single community care facility that overlooks the school fields.
Design small retail centres where the banking facilities are constructed opposite satellite police units and city council facilities. This should improve the overall security for money transactions
Collect all storm water in a detention pond that is next to the sports field so that summer rain can be utilised as irrigation water. Channel roof water to roads where practical to increase collection area and reduce pooling.
Utilise the roof tops of medium rise blocks for drying/laundry facilities as well as solar water heating, saving valuable ground area for recreation.
Place noise-generating businesses like night clubs and spazas in groups at the circle intersections of superblocks. This will create an attractive night life close to but separate from the family centres.
Link the medium rise blocks to 50% greater vehicle ownership sought after by the younger generation. The smaller building foot-print permits further parking area.
Synergies in community management, social work, orphanages and local governance
The CWD model forms the basis for several democratic structures that promote super-block management. Such a large community will have an on-going need for a great deal of the social work. However it is recognised that many informal communities have already highly organised power groups with criminal or political influences. Any attempt to organise democratic management structures will therefore need careful negotiation and acceptance within existing communities; it should be a possibility to negotiate more easily within newly formed groups. Ultimately such a negotiation will form the basis of a social upliftment contract between the city and the community and the engagement of support services involving an NGO.
Fig. 2. Prototype super-block with CWDs and medium rise flats – 1400 units plus amenities over 13,5 ha.
Ideally, therefore, a management committee of four (two men, two women) shall be elected within each CWD, at an annual community meeting. They will have a number of responsibilities throughout their year.
Each of the eight committees can send a pair of representatives to meet monthly to report on the state of their community and try to find internal solutions (a problem for one is often an opportunity to help for another). This Block Management Committee of 16 shall itself meet quarterly with the professional persons linked to this block.
The head of the school as well as church leader(s), the local community police officer, the social worker and the clinic nurse will become the key professional persons within this block. They can form a professional liaison group that should be in regular communication when specific problems arise and will interface with the Block Management Committee.A block management structure along these lines will go a long way to self-manage the needs of the 1400 families and create a well-balanced and supportive community. There will always be problems to be dealt with and it will take a while for such a large group of families to settle down to a rhythm of community life. Events held in the school hall and other venues will create a great deal of pride and develop a natural competitiveness between the communities as each one’s individual strength comes through.
An attractive feature of the CWD concept is its manageable unit size. It is expected that NGOs and corporate social responsibility programmes will find this urban structure must easier to identify with and will more readily engage in practical interventions. Their further engagement is a key tipping point to change the urban future of communities having to recycle income many times over.
Lastly, the local ward councillor will be able to call a meeting of the block representatives at any time. This relatively small group of perhaps 50 representatives for 35 000 people will be able to work very constructively on relevant issues which will greatly improve the effective communication with the city on the bigger civic matters.
A deep concern for all South Africans is the future impact of the HIV pandemic on the children of the next generation. The lack of adequate parenting could have a generally devastating effect unless successful co-parenting structures are found. One of key motivations for developing the CWD concept is to permit co-parenting of groups of children by willing parents who have passed a selection process. The four unit house lends itself to easily combining two or more units with an inter-leading door to accommodate an extra six children within an additional three bedroom re-arrangement. These extended families with be able to receive effective support too within the general school-community structure.
In-situ upgrading of informal settlements
The CWD concept lends itself to in-situ upgrading of informal settlements where the land is not totally unsuitable for residential use (for health, planning or environmental reasons). Typical informal densities in Cape Town are about 120 families per ha but do go as high as 200 in some very high demand areas. Thus a nett density of 140 per ha (without medium rise development) can absorb the vast majority of occupants and still provide some land for other uses.Using the City of Cape Town as a typical example of upgrading experiences, there has been considerable tension around the “temporary” re-location of families into translocation areas where the facilities are very basic. It would therefore be very desirable if a way could be found to construct homes within an informal area in the shortest possible time without relocation.
The CWD concept can achieve this by using a rectangular double storey laager of approximately 40 standard container homes that box-fence the existing informal settlement creating a secured construction area. Construction material is delivered to and secured within this area and only the local residents have access until the CWD is completed and handed over. The residents are moved in and out of this temporary accommodation as their shacks are sequentially demolished and units with services installed.
Using modular homes built on wooden piled foundations, it is envisaged that the entire CWD can be constructed in less than eight weeks using a high proportion of local labour as the construction technique will be simple. Nevertheless, safety aspects will need to be considered fully before temporarily employing locals and some skill transfer like carpentry could take place.
On completion, the construction crew shifts three sides of the laager to enclose an adjacent area and the roads and landscaping including paving are then completed in and around the CWD.
A social contract between the city and its informal residents.
NGOs around the world have tried many different options to upgrade informal settlements and many have admitted disappointing failure. The key to successful interventions, which have created long term social benefits with a sustainable economy, are those that have involved the community from the start in making decisions for themselves as to what sort of enterprises they want to start. This self-empowerment realisation is absolutely essential and key to turning around their poverty induced powerlessness.
The constitution’s provision of housing is really only part of the solution to redress the social neglects of the past. The transition from informal to formal housing must be seen as the ideal opportunity to enter into a social contract with the residents to prepare a win-win situation for them and the city.
This can make use of a new cohesion within the community to sustain basic services, standards of cleanliness and adherence to city regulations like electricity usage.
If properly thought through, this can go a long way to redress the current plethora of problems that the city struggles with including non-payment of rates and rentals, illegal connections, flagrant construction over boundaries, unsafe buildings, etc. The contract will provide for certain benefits enjoyed by the community if all residents comply and should include welfare support, micro-enterprise training and other opportunities. A monthly inspection and discussion with the management structure should be all that is necessary to bring about reasonable co-operation.
It is envisaged that intensive NGO support will be needed for approximately one year to produce a sustainable economy within these new CWDs and establish corporate support but the long term benefit to the city will be substantial and worth this manageable effort many times over.
Zoning, tenure options and finance
Communal living exists in various forms in South Africa. Share block, sectional title and group housing are common urban interpretations and of course ethnic rural communities have lived in communal tenure for centuries. Most zoning schemes recognise this as various levels of general residence. It is therefore suggested that the zoning approval should be given for a range of densities (say 100-200 du per ha) to allow for various options to be explored given the specific needs to that community. A right to carry out a micro-enterprise of less than 40 m2 needs to be stipulated as well as a maximum coverage. The bulk infrastructure will then need to accommodate the maximum allowable density which may only be reached in 30 – 50 years time.
From a cadastral perspective, a superblock will probably contain less than 20 erven, further reducing costs.
Fig. 3: Conceptual design for octagonal Community with Dignity (CWD) – 144 units and 32 shops per ha 76% residential, 13% open space.
Various registration options seem plausible including undivided shares or long term leasing from a Lease Area General Plan which includes the third dimension for multi-level units. The common property can remain in the ownership of the lessor which would typically be the local authority. The perception that the city is an ineffective potential landlord is, in the writer’s opinion, a false one.
It is interesting to note that recent legislation has been passed to allow for an arbitration body to be established to assist in the management of all community bodies. The Deeds Registry Act is also about to be amended to allow for the issuing of separate Certificates of Registered Title for Undivided Shares required for raising collateral. There seem to be a number of useful options available immediately to accommodate this type of structure at low cost; however if registry reform is to be further considered, efficient local registration could produce a very low cost registration system managed by the local authority.
The financing of housing is a national responsibility but this is probably going to be inadequate to meet a 10 year plan. Additional financing through the banks will be essential and the social contract needs to incorporate individual responsibility for personal debt and how this is to be dealt with to avoid communal defaulting without consequences, as is the current situation
Conclusion
Communal living offers a number of very attractive features for all levels of South Africans, surprisingly high densities without forcing high percentages of the community to live in high walk ups and offers an invaluable opportunity to restore social cohesiveness.
The substantial cost saving and improved standard of living with built-in local micro-enterprise opportunities (still very fashionable in Europe and Asia) makes a South African developed solution in this direction, involving all land and built environment professionals, an urgent national imperative. However focussed NGO support for newly established housing communities is an essential follow up service that must be budgeted for.
More than one billion people around the world live in urban slums and this figure is rising as towns and cities continue to expand. The 2nd Asia-Pacific Housing Forum will examine and propose concrete solutions for housing the urban poor and for dealing with existing slums. The forum will look at alternative approaches and scalable models involving national and local government authorities, businesses and social organizations working together and building on each other’s strengths to provide housing solutions.
The Forum is of interest to all who are concerned and engaged in providing urban poverty housing solutions like architects, academics, developers, urban planners, policymakers, NGOs, donor agencies, researchers, private and public sector actors. We invite you to join us at the September 2009 2nd Asia-Pacific Housing Forum in Manila, Philippines to:
